GREATER KOKSTAD MUNICIPAL HOUSING PLAN
CONTENTS Page
1. INTRODUCTION 4
2. POLICY AND LEGISLATIVE ENVIRONMENT 5
Introduction 5 Vision, Goal, Framework and Guiding Principles of the National Housing Policy 5 Municipal Responsibility 5 The Comprehensive Plan for the Development of Sustainable Human Settlements 6
3. IDP OVERVIEW 7
Alignment of Municipal Housing Plan with Integrated Development Plan 8 District and Local Context 8 Demographic Profile 9 Spatial Analysis 10 Availability of Infrastructure 11 Roads and Stormwater Drainage 12 Water and Sanitation 12 Sewage Treatment 15 Electricity 15 Telecommunications 16 Free Basic Services 16 Summary on Engineering Services 16
4. SPATIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT SYSTEM 16
Reviewed Spatial Development Framework 16 The Link Between Land Use Management and Spatial Development 16 Greater Kokstad Spatial Development Framework 17 Greater Kokstad Development Informant Maps 17 Settlement Hierarchy 17 Movement Corridors 18 Land Use and Environment Management 18 Conclusions 19 Land Use Management System 19 Greater Kokstad Land Use Management System: Urban Scheme 20 Greater Kokstad Land Use Management System: Rural Scheme 20
5. HOUSING STATUS 21
Legal Status (Formal and Informal Settlements) 21 Functional Status 23 Project Status (Progress) 24
6. HOUSING NEEDS ASSESSMENT 24
Quantification of Housing Need 24 Geographical Distribution 26 Land Reform Initiatives 27 Farm Worker Housing 27 Rural Housing 27 Worker Housing 27 Rental Housing 27 Special Needs Housing (Housing for Victims of HIV/AIDS) 27 6.9 Overall Assessment of Housing Need 28
7. LAND IDENTIFICATION 28
8. PLANNED AND ANTICIPATED FUTURE PROJECTS 30
National and Provincial Priorities 30 Project Categorisation 31 Housing Subsidy Scheme 31 Discount Benefit Scheme 31 Public Sector Hostels Redevelopment Programme 31 Municipal Owned Houses 32 Rental / Social Housing 32 Worker Housing 33 Other 33 8.10 Engagement with the Private Sector 33
9. INTEGRATION WITH OTHER SECTORS 34
10. HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK 35
10.1 Housing Administration 35 10.2 Institutional Framework 36 10.3 Capacity Building 36
11. PERFORMANCE MEASUREMENT 37
12. HOUSING DELIVERY PROGRAMME 38
13. CONCLUSIONS 39
REFERENCES 40
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ANNEXURES
Annexure A: Projects Completed and Closed Out
Annexure B: Projects Substantially Complete but Not Closed Out
Annexure C: Active Projects
Annexure D: Projects in Preparation
Annexure E: Identified Future Projects
Annexure F: Identification and Audit of Additional Land for Housing
Annexure G: Proposed Housing Delivery Programme
Annexure H: Cash Flow Projection for Proposed Delivery Programme
Annexure J: Photographic Record of Sites Selected For Various Projects
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GREATER KOKSTAD LOCAL MUNICIPALITY
MUNICIPAL HOUSING PLAN
1. INTRODUCTION
In terms of the Municipal Systems Act, the Greater Kokstad Local Municipality (GKM) manages the Integrated Development Planning (IDP) Process for its area of jurisdiction. The Municipality has therefore, in previous financial years, included a housing perspective as part of its IDP documentation, and the related annual review process.
In respect of the current financial year (2007/2008), GKM has acquired funding support from the Provincial Department of Housing, KwaZulu-Natal to appoint a service provider to prepare a Municipal Housing Plan as a specific sector plan or chapter of the IDP for the Municipality, and has appointed Makhosi Nyoka & Associates to undertake this initiative.
The process of preparing the Greater Kokstad Municipal Housing Plan has been undertaken in accordance with the following national and provincial policy documents, and manual:
National Housing Programme for Housing Sections of Integrated Development Plans: National Department of Housing
Guidelines to Assist Municipalities in the Preparation of Municipal Housing Plans: Department of Housing KwaZulu-Natal
Municipal Housing Sector Plan Manual (Funded by USAID): Project Preparation Trust of KZN and Department of Housing, KZN.
The methodology for the preparation of the Greater Kokstad included the following:
A best practice analysis of existing MHPs in other municipalities. Consultations with interested and affected stakeholders including officials of the Municipality, the provincial Department of Housing, Sisonke District and with developers. Review of national and provincial policy environment. Review of existing documentation, including the Municipality’s Integrated Development Plan, Land Use Management System, Strategic Environmental Assessment and Spatial Development Framework, provincial records, and district sector plans. Primary research and survey where information was lacking. Input requested from Councillors and officials. Public comment was invited through advertisement in local media, and was considered in finalising the plan.
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2. POLICY AND LEGISLATIVE ENVIRONMENT
Introduction
All housing-related activities take place within the context of the relevant planning and housing statutes and policies. It is beyond the scope of this assignment to provide an exhaustive analysis of this legislative environment. However, the following key considerations are germane to the Municipal Housing Plan:
2.2 Vision, Goal, Framework and Guiding Principles of the National Housing Policy:
South Africa’s housing vision comprises the overall goal to which all implementers of housing policy should work. The vision is outlined in the definition for “housing development”, contained within the Housing Act, 1997 (No. 107 of 1997):
“…the establishment and maintenance of habitable, stable and sustainable public and private residential environments to ensure viable households and communities, in areas allowing convenient access to economic opportunities and to health, educational and social amenities, in which all citizens and permanent residents of the Republic will, on a progressive basis have access to -
(a) permanent residential structures with secure tenure, ensuring internal and external privacy and providing adequate protection against the elements; and
(b) potable water, adequate sanitary facilities and domestic energy supply.”
The vision is reinforced in both the Urban and Rural Development Frameworks which extend the vision to focus on improving the standard of living of all South Africans, with a particular emphasis on the poor and those who have been previously disadvantaged.
2.3 Municipal Responsibility
The primary role of municipalities is to take all reasonable and necessary steps within the framework of national and provincial legislation and policy to ensure that the inhabitants within their jurisdictional areas have access to adequate housing on a progressive basis. To achieve this the functions of municipalities are:
To initiate, plan, coordinate and facilitate appropriate housing development within its boundaries. Prepare a local housing strategy and set housing delivery goals (the MHP). Set aside, plan and manage land for housing development. Create a financial and socially viable environment conducive to housing development. Facilitate the resolution of conflicts.
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Provide bulk engineering services where there are no other service providers. Administer any national housing programme in respect of its area of jurisdiction if accredited to do so. Expropriate land for housing development if the land cannot be acquired through other means.
2.4 The Comprehensive Plan for the Development of Sustainable Human Settlements
In addition, the Comprehensive Plan for the Development of Sustainable Human Settlements (August 2004) and the Guidelines for the Implementation of Labour-Intensive Infrastructure Projects under the Expanded Public Works Programme (EPWP) should be considered in formulating the MHP. The Comprehensive Plan promotes the achievement of a non-racial, integrated society through the development of sustainable human settlements and quality housing. Housing is to be utilized as an instrument for the development of sustainable human settlements in support of spatial restructuring. The aim of the plan is to move beyond the provision of basic shelter towards achieving the broader vision of sustainable human settlements and more efficient towns, cities and regions. The following factors must be taken into consideration in order to achieve this vision:
Progressive Informal Settlement Eradication: these settlements must be integrated into the broader urban fabric to overcome spatial, social and economic exclusion. The human settlement plan supports the eradication of informal settlements through in-situ upgrading in desired locations coupled with the relocation of households where development is not possible or desirable.
Promoting Densification and Integration: the objective is to integrate previously excluded groups into the city and the benefits it offers and to ensure the development of more integrated, functional and environmentally sustainable human settlements, towns and cities.
Enhancing Spatial Planning: greater coordination and alignment of various planning instruments and economic policies lies at the heart of sustainable human settlements. This requires more than mere coordination between departments but there should be a single overarching planning authority and/or instrument to provide macro-level guidance to support the development of sustainable human settlements.
Enhancing the Location of New Housing Projects: the location of housing projects has been criticized as reinforcing apartheid spatial settlement patterns. The objective of spatial restructuring demands a more decisive intervention in land markets. Interventions are envisaged in respect of accessing well located state- owned and parastatal land, acquisition of well-located private land for housing development, funding for land acquisition and fiscal incentives.
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Supporting Urban Renewal and Inner City Regeneration: urban renewal and inner city regeneration often result in the current inhabitants being excluded as a result of the construction of dwelling units they cannot afford. Some municipalities are striving to avoid this by promoting affordable inner city housing. The human settlement plan will support this by encouraging social housing.
Developing Social and Economic Infrastructure: there is a need to move away from a housing–only approach towards the more holistic development of human settlements including the provision of social and economic infrastructure.
Enhancing the Housing Product: there is a need to develop more appropriate settlement designs and housing products and to ensure appropriate housing quality.
The Expanded Public Works Programme (EPWP) is aimed at reducing unemployment by the provision of work opportunities through labour intensive methods in all government funded development projects. In respect of housing projects specifically, this can be achieved through the use of unskilled local labour and use of the Peoples Housing Process (PHP) methodology. This policy focuses on poor families in both urban and rural areas, using capital subsidies to allow people to build their own homes. It also assists people to obtain access to technical, financial, logistical and administrative support to build their own homes, on either an individual or collective basis. It would also be valuable to involve the Department of Labour in housing forum meetings, as this can combine skills development with the employment opportunities for specific projects.
The principles mentioned above should be incorporated when housing projects are being prepared and packaged.
3 IDP OVERVIEW
An IDP has once been defined as participatory approach to integrate sectoral and fiscal strategies to support the optimal allocation of scarce resources between sectors and geographical areas across the population in a manner that provides sustainable growth, equity and the empowerment of the poor and marginalized (FEPD : 1995). It is at this juncture that an IDP is referred to as council’s living document to which citizens must use to debate development issues of the municipality. The purpose of the IDP is to: assess service delivery make adjustments and amendments feed new information into budget ensure relevance of the plan as the Municipal Strategic Plan and assess changing internal and external circumstances
This section includes relevant information obtained from the references listed at the end of this document. Only sufficient information is provided here to contextualise the MHP. For greater detail, the reader is referred to the source documents.
7 3.1 Alignment of Municipal Housing Plan with IDP This being the first time that the municipality is preparing a MHP as a specific sector plan in its IDP, the preparation process is essentially independent of the IDP process. In future years however these processes will run concurrently, as illustrated in the flow diagram below:
Compiling existing Data Meetings with Community Compiling existing Data and StakeholderMeetings with Representatives Community and Stakeholder Representatives Identifying housing demand 1A Identifying housing demand 1A Identifying housing demand 1B Identifying housing demand 1B Analysing the Context Agreeing on Agreeing on Analysingof Priority theIssues Context Priority Priority 1C of Priority Issues Issues Defining housing Issues 1C Specifying housing demand 1D Definingdemand housing PHASE 1: ANALYSIS PHASE 1: Specifying housing demand 1D demand PHASE 1: ANALYSIS PHASE 1: 1E 1E
Agreeing on a vision Considering the relevance and Agreeing on a vision Considering the relevance and & on objectives Debate decision-making application of policy guidelines in & on objectives Debate decision-making applicationthe local of policy context guidelines in Negotiating supply On appropriate strategies the local context Negotiating supply On appropriate strategies objectives Negotiating supply Understanding the objectives 2 B Negotiating supply Understanding the PHASE 2: PHASE 2 B strategy 2 C conditions of supply options 2 A
STRATEGIES PHASE 2: PHASE strategy 2 C conditions of supply options 2 A
STRATEGIES
Negotiating projects Formulation of project proposals Negotiating projects Formulation of project proposals
PHASE 3: PHASE 3 A PROJECTS
PHASE 3: PHASE 3 A PROJECTS Documenting a housing Screening, adjusting, Compilation of Documenting a housing Confirming/ Screening, adjusting, Compilation of chapter & accommodating Confirming/ consolidating and agreeing on Integrated implicationschapter & accommodating of housing amending projects consolidating and agreeing on Integrated implications of housing 4 B amending projects project proposals programmes projects and municipal 4 B 4 A project proposals programmes projects and municipal 4 A roles in the integrated PHASE 4: PHASE rolessector in plansthe integrated and PHASE 4: PHASE INTEGRATION sector plans and
INTEGRATION programmes programmes Inviting and incorporating Adoption by Adoption by Invitingcomments and incorporating Council IDP comments Council IDP Confirming/ 5 A Consolidation of the housing amendingConfirming/ housing chapter 5 A Consolidation of the housing 5 B PHASE 5: PHASE chapter into sector plan that APPROVAL amending housing chapter 5 B
PHASE 5: PHASE chapter into sector plan that APPROVAL includes relevant IDP sections includes relevant IDP sections
Figure 1: Alignment of MHP with IDP
3.2 District and Local Context
Greater Kokstad Local Municipality is located within the south western portion of Sisonke District Municipality, which in turn is situated in the south west of KwaZulu-Natal Province.
The town of Kokstad is situated in the Mount Currie Magisterial District and is well located within the Midlands. The town is the largest service centre in the Sisonke District Municipality area of jurisdiction. It is a commercial and educational hub, providing services to the whole of the area and north-eastern parts of the Eastern Cape.
The transport network which includes the N2, and R56 integrate Kokstad to the major economic nodes of Durban and Pietermaritzburg. Accessibility of the area provides a basis for the location of several government departments, providing services to Greater Kokstad and its surrounding areas as well as to the north-eastern areas of the Eastern Cape.
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3.3 Demographic Profile
This section outlines the demographic profile of the municipality.
The 2001 Census has been used by the municipality as a base for current and future planning though the municipality has raised some concerns regarding the accuracy of the figures as it is believed that the total population for the area is greater than the 2001 census figures and forecast. The municipality has been hoping to conduct it’s own analysis of the population to determine figures more accurately, but this is subject to the availability of funding for such an exercise.
The municipality has calculated population estimates based on a 2, 21% growth rate.
Population 2001 2007@ 2,21% Group growth estimates African 46 832 53 395 Coloured 6 209 7 079 Indian 454 517 White 3 030 3 453 TOTAL 56 526 64 444 POPULATION
It should be noted however that while the national population is expected to increase, the growth rates will be declining, due to high HIV infection rates, from approximately 1,53% in 2001, to 0,6% in 2005 and only 0,1% in 2007, at which point the population will begin to decline. It should also be noted, that as KwaZulu-Natal has the highest incidence of HIV infection, the decline in population will be greater here than in the country as a whole.
HIV infection rates in KwaZulu-Natal are projected to peak this year (2007) at 19,2%, and AIDS related deaths will peak in 2009 at 194 690 (25,6% of the national total for that year). By 2010, life expectancy in KwaZulu-Natal is projected at only 37 years, from a life expectancy of 59 in 2000. This compares with a national life expectancy of 41 in 2010, declining from 56 in 2000.
This decline in population and population growth rates, will however be mitigated by in- migration from surrounding areas. The extent of this migration is however very difficult to estimate.
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It is reasonable to conclude, however, that there will be very limited population growth for the foreseeable future.
The 2001 population figures from the 2001 census given above represent 20 561 households. The number of heads of household employed is only 11 380, representing 55% of households.
3.4 Spatial Analysis
Greater Kokstad Municipality has three urban nodes Kokstad Town, Swartberg and Franklin. Kokstad Town is the major economic centre due to its strategic location in terms of the existing transport network, and economic and administrative activities. The National Route (N2) links the area to the major economic nodes such as Port Shepstone and Durban in the Kwa-Zulu Natal Province and Umtata in the Eastern Cape Province. The R56 links Kokstad to Ixopo and Pietermarzburg. The strategic location of Kokstad creates opportunities for economic growth.
Emanating from the spatial location of the area is a high population growth rate due to high immigration of people from the Eastern Cape and Lesotho into the area in search for employment opportunities. The municipality is therefore faced with a challenge of planning, providing basic services, housing and creating employment opportunities for its growing communities
There are also land reform projects in rural areas like Pakkies I and 2 and Kransdraai. Apart from the built environment there is agriculture, indigenous forests and areas of biodiversity. The municipality acknowledges the relationship between the built and the natural environment and has adopted an integrated approach to development and protection of the natural environment.
One major spatial challenge facing the municipality is illegal occupation of land for housing purposes. The municipality has no systems in place to deal with the situation. However, the implementation of a Land Use Management System (currently in the preparation phase) and the preparation of by laws (to be prepared after the Land Use Scheme has been completed) will enable the municipality to control land use and apply to court to demolish any structure that is in contravention of its Land Use Scheme. This will contribute towards orderly and harmonious development. In this regard, cognisance should be taken of the KZN Elimination and Prevention of Re-emergence of Slums Bill, 2006, which should be of assistance to the municipality.
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3.5 Availability of Infrastructure
The feasibility of any housing development is to a large extent governed by the availability of engineering services, specifically road access, water supply, sanitation and electricity. If bulk services have to be provided from a considerable distance to any proposed housing development, this can render the housing development to be unviable.
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3.5.1 Roads and Stormwater Drainage
The area benefits from two types of transport mode in terms of infrastructure in place, Rail Transport and Road Transport. Road Transport consists of four categories: the National Road (N2), Provincial Roads (R56), District Roads and Local Roads.
The railway line is not currently being used. Road transport is the only functional mode of transport in the area. This has resulted in roads being degraded thus, requiring frequent maintenance which has major financial implications. The railway line can be used to transport goods, agricultural products or people depending on consumer demand. The revitalization of the railway line remains a Spoornet function.
In relation to Provincial Roads, the Department of Transport (DoT) currently maintains gravel roads in the outlying settlements of Greater Kokstad. DoT in the 2003/2004 completed Road Infrastructure for Horseshoe Settlement and Extension of Wylde Road Storm Water Drainage. The Department is currently constructing L149 1 and 2, Thuli Rustlers Route Phase 1 drainage, Maraiskop Road No1, Widening of the road (entrance into Kokstad from the South) and Mzintlava Bridge and construction of Mariaskop Road 0.3 km materials. During 2005/06 financial year projects such as widening of bridges along major roads into Kokstad have been implemented and some of them are underway. There are also a number of road projects to be implemented by DoT in the upcoming financial years in the area. Regardless of what has been achieved, the existing condition of roads and stormwater drainage leaves much to be desired. Contributing to the demand for roads infrastructure are major housing developments in areas like Eastview, Riverview, Willowdale, Shayamoya and Horseshoe.
3.5.2 Water and Sanitation The function of water has been taken over by Sisonke District Municipality and Greater Kokstad Municipality has signed a service level agreement with the District. All water and sanitation related functions are now performed by the Sisonke District Municipality.
According to the backlog study conducted by the district municipality, Greater Kokstad Municipality requires funding estimated at R10 474 025.60 for water and R3 855 958.80 for sanitation backlog inclusive of operating and capital costs.
POPULATION POPULATION STATUS PERCENTAGE FOR PERCENTAGE FOR WATER SANITATION
75,04 % 72,87% Served above RDP
10,27% 10,75% Served at RDP
0,00% 0,00% Served below RDP
14,69% 16,38% Unserved Backlog study 2005
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In Thuthukani there are two boreholes equipped with hand pumps. Because of the position of these springs residents prefer obtaining water from an unprotected spring and river stream thus increasing their chances of contracting water-related disease.
Ekuthuleni is a land reform area which is in process being serviced for formal resettlement. Currently the area has no formal water supply and this issue will form part of the development plan of the area which is being addressed by the Department of Land Affairs, Greater Kokstad Municipality and Sisonke District Municipality. The community currently makes use of nearby streams as the main source of water. There is no proper sanitation facility and for this reason the community makes use of bushes and nearby dongas. The situation may result in contamination of the underground water.
Pakkies area has formal water supply with only 15 standpipes. The area has a protected spring supplying a service reservoir and communal stand pipe reticulation. The water supply clearly does not meet the DWAF requirements in terms of both the quality and level of service. There are two institutions i.e. school and community hall that are not connected to the existing water infrastructure. There is no proper sanitation that exists in the area.
In Maraiskop area, the Hilltop section has its water source as the nearby river. The weir was constructed across the river and water is extracted directly from it. This therefore means the community is consuming unpurified water. The Middelbult community draws water from a protected spring. Vaalbank community currently uses a borehole. There is no proper sanitation facility existing in the greater Mariaskop.
Makhoba residents use unprotected spring as a source of water. Water gravitates through furrows to an earth fill dam, from where it is pumped to two elevated plastic tank prior to distribution to the households. There is no proper sanitation in Makhoba.
In Wansbeck there is a water supply currently under implementation, which meets DWAF and RDP guidelines. No proper sanitation in existence.
In Franklin out of 215 households, 200 reside in informal settlement. The remaining 15 are Spoornet properties and are therefore supplied with water through 15 yard taps. The Greater Kokstad Municipality has provided the informal settlement with two tap stands and five flush toilets.
Swartberg comprises of 265 households of which only 5 households have proper water supply and sanitation facilities.
In Kransdraai there exists only one borehole fitted with a positive displacement, line shaft driven, Mono pump powered by a 3-phase 380 v. and 4KW electric motor. Water is dispensed to the community through yard trickle feed tanks. Out of 102 households, 98 have yard connection with one tap stand and pay a monthly flat rate of R13.00 towards operation and maintenance. There are 98 brick VIP toilets in Kransdraai.
In Ergeton, water is sourced from an existing borehole in the local school and there is no sanitation facility in existence.
13 There is full reticulation system in areas of Kokstad, Bhongweni, Extension 7, Shayamoya and Horseshoe. The physical infrastructure like bulk pipelines and reservoirs are in generally good condition however, 65% of the reticulation infrastructure dates back to the 1950’s and 1960’s and needs to be upgraded or replaced. The upgrading program for urban infrastructure has been developed in the Sisonke District Municipality Water Services Development Plan.
Current upgrading of bulk water supply in the area includes a weir on the Mzintlava River, a high-lift pump-station and a 5 km rising main to deliver 5MI/d to the waterworks to augment the raw water supply from Crystals Spring Dam; a 3rd clarifier at the waterworks (increasing the clarification capacity from 9 MI/d to 13,5 MI/d); a new chemical dosing facility and modification to the chlorine gas handling and regulating equipment in order to meet recently amended statutory safety requirements.
Notwithstanding the above the Greater Kokstad Municipality is faced with a challenge of water shortage. There is a need to upgrade Bulk Water and Sewerage Services to cater for new developments in the area. A report done by Ninham Shand in 2004 indicates that the Bulk Water Supply’s capacity to meet future demand in the area is limited by: old filters which without the drought restrictions are at the limit of their capacity as a result a new filter building (designed for 18 MI/d but initially equipped for 9 MI/d ) is required insufficient clean water storage insufficient Crystal Springs Dam Gravity Pipeline (currently close to its limit) clarifier capacity will be insufficient in the near future
With regards to clean water storage the existing 4,5 MI reservoir at the water works acts as: balancing storage between the waterworks output and fluctuating demands, primary storage for Kokstad high level zone and augmenting primary storage to areas with insufficient local storage (Kokstad low zone, Shayamoya and Bhongweni). The water works operator is experiencing difficulty maintaining sufficient primary storage in the above-mentioned reservoir due to increasing balancing requirements. Until such time as more reservoir capacity is provided at the waterworks, this reservoir cannot be taken out of service for maintenance and cleaning.
To increase all aspects of bulk water supply the following upgrading is proposed:
Construction of Booster Pump station at Crystal Springs Dam to increase delivery capacity from dam to 18MI/d Construction of a new 18MI/d Filter Building (equipping 3 of 6 filter beds being deferred and retaining oldest filters in service) Providing recycling facility for spent backwash water (incorporated in new filter building) Providing pre-chlorination facilities for the water pumped from the river (incorporated in new filter building), Construction of 4th clarifier to increase overall clarifier capacity to 18MI/d Construction of 10 MI/d reservoir at water works and Construction of staff quarters near water works (current quarters are limited and form part of the existing filter building)
A total of R21 160 000 excluding VAT is required to bring all the aspects of the supply to a capacity, which can meet a Peak Week Daily demand.
14 Greater Kokstad has poor raw water supply because of droughts in the area and this issue has been highlighted in the Disaster Management Plan. In the 2003/2004 financial year DWAF granted the municipality R4 million for Drought relief program. Drought relief measures currently being undertaken in Kokstad include the following:
The construction of a 6 m high concrete dam on the Mzintlava River just upstream of the new river abstraction and pumping scheme (storage capacity of 400 000 m³) Facilities to divert river water into a disused quarry next to the above mentioned dam and pump the water back into the river when the river flow fails (storage capacity of 230 000 m³) Construction of various water reticulation pressure reducing control valves and The equipping of 1 borehole (capacity of 200 m³/ day)
Once completed the above measures will effectively solve the short and medium term raw water supply limitation. It should however be noted that full assessment of the raw water supply capacity should be undertaken to allow for timeous planning.
3.5.3 Sewage Treatment The provision of sanitation in residential and commercial areas is made in a form of waterborne system. The sewerage treatment works has reached its carrying capacity and needs to be upgraded to ensure that effluent produced meets DWAF water quality requirement. In small towns such as Franklin and Swartberg the majority of households are serviced with septic tanks. The small portion of Franklin on Spoor net property is serviced with waterborne system. This system will be taken over by the District once transfer of property from Spoornet to the municipality has been finalized. Kransdraai and Maraiskop are serviced with Ventilated Improved Pit Latrines (VIP’s).
The Ninham Shand report prepared in 2004 indicates that the mechanical drum screeners are urgently required for the inlet to the works. It is also mentioned that non-biodegradable fibrous matter and plastics especially condoms are causing severe operational and process problems and a sum of R1.2 million is required to resolve this. An additional R19 million (excluding VAT) is required to duplicate works capacity.
3.5.4 Electricity Electricity in the area is supplied by two service providers: Greater Kokstad Municipality and ESKOM. Greater Kokstad Municipality purchases power from ESKOM and supply it to the old Kokstad Municipal area while ESKOM supplies electricity in rural areas. The municipality is responsible for reticulation and cost recovery in the area it is currently servicing. One major challenge with this arrangement is different tariffs charged by the service providers.
Power is generated from ESKOM Sub-station which derives its power from Harding and supplies Municipal Sub-station. The new housing developments in the area such as Eastview, Riverview, Willowdale, Area 12 and 13, Phase 2 and Horseshoe Phase 3 have created a great demand for electricity supply in the area. Most rural communities such as Pakkies Areas, Franklin, Kransdraai, Wansberg, Nauwpoort and Maraiskop require electrification.
15 3.5.5 Telecommunications Telkom is the authority for telecommunications in the Greater Kokstad Area. The majority of people in formal urban settlements have access to Telkom services. In rural areas the majority of people rely on cellular phones and cellular network coverage is weak to non- existent in most areas.
3.5.6 Free Basic Services
The municipality has adopted an Indigent Policy (which relates to refuse collection and electricity) the implementation of which started during 2005/06 financial year. On implementation of the policy, the municipality managed to register about 2017 indigents. The municipality, understanding the number of its indigents has then reopened registration in July 2005 and closing on 31 January 2006 to afford members of the community an opportunity to register,. The threshold to qualify for this benefit is an overall household income, which does not exceed R1600. The said beneficiaries are entitled to electricity worth R20 and R30 for refuse. Only the indigent community of Greater Kokstad will benefit through this programme. The District municipality is in the process of developing its indigent policy, which will respond to consumers who cannot afford to pay for the water usage.
3.5.7 Summary on Engineering Infrastructure
Appearing as a challenge in the municipality is low revenue base, which emanates from the high rate of unemployment. The majority of people in the area do not pay for services rendered and it becomes difficult for the municipality to provide and maintain services. It is indispensable that the consumers do pay for services rendered so that the municipality is able to maintain the standard of services. However, the high unemployment rate remains an obstacle.
4 SPACIAL DEVELOPMENT FRAMEWORK AND LAND USE MANAGEMENT SYSTEM
4.1 Reviewed Spatial Development Framework
Greater Kokstad Municipality has reviewed its Spatial Development Framework and a detailed document is available. For the purpose of the MHP we have included a summary of the SDF. Based on the development strategies identified in Greater Kokstad’s IDP, the Spatial Development Framework has taken into account the following critical areas to be developed spatially:
Agricultural Development and Tourism Development
4.2 The link between Land Use Management and Spatial Development
It is important to note that the IDP Spatial Development Framework is intended to form the basis for the Land Use Management System for the municipal area (Land Use Management referring in this instance to a) the control of development and b) the facilitation of development). These two aspects place different requirements on the Spatial Development
16 Framework - one the one hand it must be detailed enough to guide the implementation of land use rights (by means of Planning Schemes), while on the other hand it must identify measures to stimulate development.
4.3 Greater Kokstad Spatial Development Framework
4.3.1 Greater Kokstad Development Informant maps:
The Development Informant maps are a series of maps, which show spatial trends and issues. These maps are used as the informants for the Land Use Management system, which is developed by the Municipality.
The following maps have been prepared:
. Map 1 – Updated Cadastral Base Map . Map 2 – Minset Data from EKZN Wildlife (Critical Areas) . Map 3 – C-Plan Data from EKZN Wildlife (Critical Areas) . Map 4 – Agricultural Land Potential Map . Map 5 – Spatial Development Framework . Map 6 – Important Species, Eco-Systems, Landscapes and Wetlands – EKZN Wildlife . Map 7: Tourism Plan . Map 8 Population Density Map
From a study of the abovementioned maps, the following key spatial trends and issues have emerged:
4.3.2 Settlement Hierarchy
a. Primary Node
Kokstad is the largest population centre in the municipality and predominates massively in the Municipality’s economy. In this node the CBD is dissected by R59 and intersected by R617 which are both Primary Movement Corridors.
b. Secondary Node
Swartberg the second largest population centre in the municipality on the R609 primary movement corridor plays an important role as a service centre to farmers in the north of the municipality by providing a small variety of commercial and social services.
c. Satellite Service Nodes
These were identified in Franklin, New Amalfi and Kingscote.
d. Primary Tourist Nodes
Mount Currie Nature Reserve, the proposed Cultural Centre opposite Wimpy, and the Mission at Kags Post are primary tourist nodes in the Greater
17 Kokstad Municipality. These have cultural and historical significance, which will enhance tourism in the Municipality.
4.3.3 Movement Corridors
a. Primary Corridor
R617, N2, R56 are the primary corridors within the Municipality. These provide high linkages with surrounding municipalities and economic nodes. Along R617there are views of scenic beauty and landscapes, which can attract both domestic and international tourimt thereby promoting LED projects at some locations.
b. Secondary Corridor
D609 joining D622 to Wansbeck is a secondary corridor and also provides linkages to the Drakensberg.
P604 connecting Matatiele to R617 provides a short cut to Pietermaritzburg and the N3 and its potential could be strengthened through surfacing.
R602-1 to Creighton and Umzimkulu provides a linkage between Franklin, Umzimkulu and Creighton.
c. Tertiary Corridor
These corridors provide vital linkages to service satellites in the district and ensure connectivity with service delivery in the communities.
4.3.4 Land Use and Environmental Management
a. Wetlands (Potential Conservation Areas)
Only one formal conservation area exists within the urban area of Kokstad (Mount Currie Nature Reserve).
The potential exists for extensive conservation measures on large areas of wetlands to be implemented throughout the Municipality with respect to important eco-systems, habitats, landscapes and fauna (especially the Franklin Vlei).
b. Commercial Agriculture and Tourism
Commercial agriculture exists throughout the municipality. Future development of the municipality should seek to preserve the agricultural land in the area, develop its specific potentials and provide for diversification eg. Tourism and forestry. Although other areas have been identified where such specific diversification should occur they should not be viewed as inhibiting commercial agriculture occurring on a mixed basis.
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c. Primary Getaway, Adventure and Eco-tourism
Although much of the area is farmed for commercial agriculture it contains a vast combination of natural resources and landscapes for getaway tourism.
In the course of diversifying to tourism conservation efforts should be applied using protection mechanisms such as bio-sphere reserves. Any tourism development should integrate with such efforts. From a tourism plan done by the distrct, and the local municipality, Greater Kokstad shows potential for this tourism.
d. Potential opportunity for rural housing
Settlements with potential for rural housing identified through the IDP processes in the municipality include for example, Pakkies, Makhoba and Wansbeck. These developments will improve the socio-economic conditions of the rural communities.
e. Urban Expansion Land adjacent to the Mount Currie Motel to the east and land to the North of the N2 has potential for urban expansion in the form of middle to high income housing and industrial development. This would assist in job creation within the Municipality. Land to the North of Mount Currie Secondary School also displays potential for urban expansion.
4.3.5 Conclusions
The Greater Kokstad Spatial Development Framework (SDF) provides a broad indication of where different types of development should take place within the municipal area. As such it provides general direction to guide decision-making (and thereby contribute towards the creation of integrated and habitable towns and residential areas), a framework for the formulation of an appropriate land use management system for the municipal area and a framework for public and private sector investment. This plan is currently reviewed to reflect potential projects in spatial form as per comments from DLGTA during IDP Assessment for 2006/07 financial year.
In respect of housing development, there is an excellent correlation in respect of both the existing and potential new housing projects with the main spatial framework elements. All existing projects and almost all potential new projects are situated within the designated development nodes, the only exceptions being relatively small rural developments. Those that are not situated in development nodes relate well to movement corridors (see attached plan showing an overlay of housing projects in relation to the main spatial framework elements, at the back of this document).
4.4 Land Use Management System
The Greater Kokstad Municipality has embarked on developing a comprehensive and flexible Land Use Management System for the greater municipality including both urban
19 and rural components. Due to the nature of the municipality being semi-urban/rural, the project has been divided into two phases. The first phase is the Kokstad Urban Scheme which is an extension of the existing Kokstad Town Planning Scheme to include newly developed township areas such as Shayamoya and Horseshoe, as well as existing areas like Bongweni, Kokstad town centre and surrounding suburbs. The second phase, the Kokstad Rural Scheme covers all rural and farm areas, as well as adjoining informal settlements with no current proper land use management system.
4.4.1 Greater Kokstad Land Use Management System (LUMS): Urban Scheme
The LUMS for the municipality has been developed to achieve the promotion of co- ordinated and harmonious development that will tend to promote health, safety, order, amenity convenience and general welfare as well as economic development. This also seeks to achieve a pattern and distribution of land uses which generally:
Retains and enhances established residential neighbourhoods, industrial districts, open space and amenities. Allows for flexibility and the introduction of compatible uses in residential neighbourhoods. Allows for flexibility in the commercial area by permitting a combination of commercial uses and residential uses. Promotes the development and expansion of the tourism potential area.
4.4.2 Greater Kokstad Land Use Management System (LUMS): Rural Scheme
The purpose of this Policy is to identify suitable zones for the management of rural land in the municipal area based upon the principles of the LUMS guidelines manual and to put forward a management system that can be applied by the Local Council to areas which were formerly outside of the urban areas currently covered by the Planning Schemes. The purpose of this Policy is to promote co-ordinated and harmonious development of the municipal area in such a way as will most effectively tend to promote health, safety, order, amenity, convenience and general welfare, as well as efficiency and economy in the process of development, and the improvement of communications. The purpose generally is to ensure that the principles of sustainability, efficiency and integration are achieved. In furtherance of this purpose the Greater Kokstad Municipality desires to achieve a pattern and distribution of land uses which would generally provide for the following:
Accommodate desirable land uses. Provide a framework to resolve conflict between different land uses. Promote certainty of land use. Promote the efficient use of land. Promote the efficient movement of persons and goods. Promote economic activity. Promote the amenity of adjacent land uses. Protect natural resources, including prime agricultural resources. Protect cultural resources giving due consideration to the diversity of communities. Protect and enhance unique areas or features of environmental significance and biodiversity. Manage land generally, including change of land use and sub-division.
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5 CURRENT HOUSING STATUS
Kokstad Town, being the main urban centre in the municipality accounts for the bulk of formal housing, for all income groups, as well as the majority of informal settlements.
Swartberg, being the secondary centre, has a correspondingly smaller proportion of housing stock.
Housing for communities, which are more rural in nature, is present in the other secondary nodes at Makhoba, Pakkies and Wansbeck, and at the tertiary nodes at Franklin, New Amalfi and Kingscote. Outside of these nodes, population densities are relatively low, and generally comprise communities of farm workers and their dependants.
Greater Kokstad Municipality has been proactive in initiating and implementing housing projects, and has established a track record of delivery in the housing sector (see Annexures A and B). Over 6000 housing opportunities have been provided to date, since the inception of the Government’s housing subsidy scheme.
However there still exists a significant demand, as evidenced, particularly by informal settlements, mainly in the vicinity of Kokstad Town. The municipality is also pursuing substantial initiatives in rural housing development and land reform, as well as public- private partnerships, both in worker housing and the provision of rental stock.
Existing settlements and housing projects can be categorised from various perspectives.
5.1 Legal Status (Formal and Informal Settlements)
Formal Settlements Formal Settlements are planned settlements approved by the municipality and relevant government departments including the Department of Housing. Formal settlements are planned in such a way that service delivery such as water, sanitation, electricity and roads become part of planning and implementation phases. The municipality acknowledges the challenge of servicing unplanned and scattered development and is therefore promoting densification by developing suitable vacant land. Urban sprawl, which is caused by uncontrolled development has a negative impact on service delivery, the environment and economic growth and should be avoided. Planned and dense settlements are easier to service in terms of engineering, economic and social services. Formal settlements occur at all primary, secondary and tertiary nodes in the municipality.
Informal Settlements
Informal settlements are housing developments, which have not been planned and approved by the municipality or Housing Department, are caused by illegal occupation of land, and development is not accompanied by housing infrastructure such as roads, electricity, sanitation, water and social services. Informal settlements are generally located in areas that are not suitable for low income housing. They lack spatial logic, making it is difficult and costly to service them.
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The table below illustrates the informal areas that need urgent attention within the Greater Kokstad Municipality. Detailed investigation will be necessary to determining the feasibility of formalising, re-planning or replacing the informal settlements. The municipality is currently engaged in such investigations.
RESIDENTIAL STATUS QUO SERVICE LEVEL AREA Franklin Quarters . Approximately 500 informal Access gained through dwellings with an estimated undefined informal roads. population of more than 1500 Water and sewer supply . Area situated on privately need major upgrading. owned land (owned by Spoornet) at Franklin urban centre is close proximity to Franklin urban underdeveloped to centre. economically service any . Area lacks non-residential development in the area. facilities. . Area located on wetland next to the Vlei. Area 12 Bhongweni . Approximately 514 informal No clean water dwelling with an estimated No electricity population of 2 416 Very poor roads . Most densely populated area in Bhongweni . Site sizes range from 80-300 square metres . In close proximity to Kokstad Town . Area is serviced with basic communal pit latrines, and unsurfaced roads which are inaccessible in poor weather conditions Area 13 . Located between Horseshoe Basically non serviced Development and the railway line No Clean water Horseshoe within former Kokstad Municipality No Electricity Estimated 263 informal dwellings Very poor roads with an estimated population of 1 236 . Less densely populated compared to Area 12 above . Site sizes range from 300 square metres and above . Strategically located and is in close proximity to Horseshoe Development which provides access to opportunities
22 Area 1 . Located to the Eastern corner Basically non serviced of Bhongweni adjacent to the No Clean water Lindelani cemetery and railway line No Electricity . Estimated 52 informal Very poor roads dwellings with an estimated population of 244 Area 9 . Located on a steep slope Informal internal roads Estimated 77 dwellings with an have been constructed Ezibayeni estimated population of 362 No Clean water No Electricity Very poor roads Area 7 and 8 . Located on a fairly steep No services slope Bhambayi . Estimated 137 informal dwellings with an estimated population of 738 Area 6 . This is an area that has been There are services built on a wetland. The Eastview/Riverview community here is very crowded in small buildings and others stay in the old toilets as their rooms. This is one area that will be included under the ‘Slums Clearance Project’. . The estimated number of beneficiaries is about 200.
5.2 Functional Status
The functional status refers to the particular type of housing need addressed. These priorities or categories include urban development and slum clearance, rural housing, rental housing, hostels redevelopment, and meeting special needs e.g. victims of HIV/AIDS, and orphans.
To date the emphasis in Greater Kokstad has been urban development and slum clearance. This is evidenced in the numerous urban projects around Kokstad Town, such as in Bhongweni, Shayamoya and Horseshoe. It is appropriate that significant diversification is now taking place, with initiatives in rural housing, worker housing and the provision of rental stock being prepared.
Existing and proposed new housing projects are described, together with their functional classifications, in Annexures A to E.
23 5.3 Project Status (Progress)
Housing initiatives are generally undertaken on a project basis. Assessing the project status provides an indication of progress with any particular initiative. The project status can nominally be categorised as follows:
Future Project: a potential new project has been identified In Preparation: feasibility study, risk assessment and project packaging are underway In Implementation: funding is approved, and final design and construction are underway Substantially Complete: construction is finished and houses occupied Closed Out: all administrative processes and financial reconciliation are finalised
Of particular importance in government funded housing initiatives is the necessity of closing out substantially completed projects. This is important firstly from an accountability perspective, to ensure that the public funds allocated have been utilised effectively, and for the purpose approved, and secondly to enable funding to be allocated to new or future projects. The provincial Department of Housing is reluctant to approve new housing initiatives in any given municipality, where older initiatives have not been finally closed out.
In terms of establishing a multi year programme for the implementation of housing delivery, it is essential to ensure that sufficient initiatives are being identified as potential future projects, and that sufficient projects are in preparation. This is also important to ensure that the municipality will receive an adequate share of the Provincial Housing Fund, and that funds which could be utilised in Greater Kokstad, are not allocated elsewhere.
6 HOUSING NEEDS ASSESSMENT
6.1 Quantification of the Housing Need
Quantifying the housing need can be undertaken in a number of ways.
Firstly is the information for existing dwellings, provided by Census 2001:
The census information is now six years old, and must be interpreted in that context. It does indicate a substantial number of informal dwellings (2136), with 68 families living in temporary shelter (caravans or tents). It can also be assumed that a significant proportion of rooms or flats in backyards and on shared property (1135) do not constitute adequate shelter. The traditional dwellings (4201) will mainly be in rural areas, and also constitute a priority for the provision of adequate housing. It can also be assumed that a small proportion of conventional housing is inadequate, and needs to be upgraded or replaced. From the census information therefore a need for about 9000 houses can be deduced.
24 Dwelling Type
House or brick structure on a separate stand or yard 10 623
Traditional dwelling/hut/structure made of traditional materials 4 201
Flat in block of flats 1 227
Town/cluster/semi-detached house (simplex;duplex;triplex) 229
House/flat/room in backyard 891
Informal dwelling/shack in backyard 669
Informal dwelling/shack NOT in backyard 1 467
Room/flatlet not in backyard but on shared property 244
Caravan or tent 68
Not applicable (institution) 941
Total 20 560
This can be categorised as follows:
Housing Category Housing Need (number of units)
Slum Clearance 3050
Rural Housing 2100
Rural Land Reform 2100
Rental Housing 1400
Hostel Redevelopment 200
Farm Worker Housing 150
Total 9000
Secondly would be information contained in a housing waiting list, maintained by the municipality. Greater Kokstad Municipality has, in the past, kept a housing waiting list, but this has become out of date, and cannot therefore be taken into account for this municipal
25 housing plan. Experience both here and elsewhere has exposed the inaccuracy of waiting lists and the difficulties experienced in keeping such lists current.
A third mechanism would be to compile information from ward committees. This has not been undertaken as yet within Greater Kokstad, but is viewed as a potentially useful tool for the future.
The fourth method would be a specific survey at a given point in time within the municipality. This has recently been undertaken by municipal officials, but only in certain specific locations containing informal dwellings. This has yielded the following information:
Area Surveyed Housing Need
Eastview/Riverview 120
Swartberg 300
Wansbeck 120
Bhambayi 150
Horseshoe 250
Shayamoya 200
Kraansdraai 175
Maraiskop 60
Nauwhoek 35
Total 1 410
This survey is current, and can be utilised to plan for housing initiatives in the areas addressed.
6.2 Geographical distribution
Kokstad Town, being the main population centre and chief source of economic opportunity, accounts for the largest housing need. The recent survey identified 720 informal dwellings in the vicinity of Kokstad Town, and 1043 in and around Bhongweni. Smaller centres such as Swartberg and Franklin exhibit correspondingly smaller demands for housing. A project for Franklin, comprising 450 houses is currently being prepared.
26 6.3 Land Reform Initiatives
Of significance are the various land reform initiatives throughout the municipality, such as Makhoba, Pakkies, Ekuthuleni and Kransdraai. Makhoba in particular, represents a substantial development, with a demand for 1400 houses envisaged. Another potential project for Pakkies has been identified, for 420 units.
6.4 Farm Worker Housing
Other, generally smaller housing development needs are present in the form of farm worker housing in areas such as Willowdale, Maraiskop, Wansberg and Nauwhoek. These are described in Annexure E.
6.5 Rural Housing
One important feature in respect of Greater Kokstad Municipality is the absence of land under traditional authority, and held in the name of the Ngonyama Trust. Settlements on such land represent a significant development priority to the provincial Department of Housing, together with an appropriate budgetary allocation. This however is not applicable in Greater Kokstad.
6.6 Worker Housing
Another important feature in Greater Kokstad is both the supply and demand for worker housing in respect of large industry and major institutions. This is currently represented by housing demand in respect of the Hans Merensky development (timber industry), the hospital, and the prison. The Hans Merensky development is currently envisaged to provide 600 houses.
6.7 Rental Housing
The municipality has identified a significant need for rental housing, mainly to accommodate workers who retain their family homes elsewhere. This group includes educational and health workers, as well as employees of various industries and businesses, mainly around Kokstad Town.
It will be important in addressing this need, that the municipality becomes familiar with government policy in respect of rental housing. An earlier initiative by the Department of Housing to make a presentation to the municipality was aborted. This initiative needs to be revived, in order to assist the municipality in taking the matter forward.
The municipality is currently in negotiation with a company called Respond Housing with a view to establishing a public private partnership for the provision of rental housing. It is envisaged that about 600 units will be supplied, and that they will target the middle-income bracket.
6.8 Special Needs Housing (Housing for victims of HIV/AIDS)
The full extent of the impact of HIV/AIDS within the municipality has been difficult to quantify. However it is known that it is significant. This has substantial impacts on the determination of housing need. From one perspective it is limiting the actual growth of
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population as described and quantified in Section 3.3 above. From a different perspective it presents the challenge of how shelter should be provided for the elderly and for orphans, who have lost the support of economically active family members. It also presents the challenge of providing shelter for the sick. Experience elsewhere indicates that institutionalisation is not going to be a practical solution, given the extent of the pandemic. There is significant support for the concept of caring for people within their own communities and within their family structures as far as possible. This proposition is to a large extent also supported by cultural values.
Several private institutions, generally funded by religious denominations, are currently operating within the municipality in support of victims of HIV/AIDS. It will be important however for the municipality to quantify the extent of the need in this sector, and to establish strategies to address the challenge.
6.9 Overall Assessment of Housing Need
The overall scale of housing need in Greater Kokstad at present amounts to 9000 units. Of this total, 1877 houses will be provided as a result of projects currently in preparation. An additional 3406 will be supplied as a result of identified future projects. This leaves a balance of 3717 houses still needed and for which planning still has to be undertaken.
7 LAND IDENTIFICATION
Greater Kokstad Municipality has in recent years made excellent progress in respect of establishing policies for its Spatial Development Framework and Land Use Management System. It is thus very well placed to direct and manage development within its area of jurisdiction. It has also identified the housing need, both in terms of the housing demand in various geographical locations, and the functional requirement i.e. urban development, rental housing, farm worker housing, land reform projects, etc.
However in respect of housing development in particular, the municipality now needs to take this process the next step forward, which is to identify particular areas or parcels of land on which the various housing developments could take place. Only when specific parcels of land have been identified, and through land audit found to be suitable for development, can specific projects be taken forward. This in turn, initiates the whole process of project feasibility study, risk assessment, preparation and packaging, as illustrated in the project preparation cycle flow diagram below.
28 Project Preparation Cycle
This process of land identification and audit has commenced for certain parcels of land in the vicinity of Kokstad Town and elsewhere. The status of this study is given in Annexure F. The linkages between land already identified and planned projects are also shown in the table.
Within the town of Kokstad itself, much of the land is already developed, and is therefore not available for new housing development. However there is a significant potential for urban densification. This is the process, which occurs through the development of vacant land, the result of which is an increase in city, town or urban density. It can also occur through compaction i.e. an increase in net residential density through the addition of new units or people into an area through the subdivision of land or through the expansion of floor space of existing buildings.
Greater Kokstad Municipality has vacant land in various areas, for example, Bhongweni Area 16. The site is 6760 square metres and is the remaining vacant portion in Bhongweni. The site is strategically located and has high potential for infill. Kokstad East Residential Area comprises 600 dwellings units and is well located between Bhongweni and the centre of Kokstad Town. 55 % of the land is under-developed and can accommodate approximately 750 dwelling units. The area is comprised of large plots of about 4000 square metres and has not been subdivided.
29 Residential development in the area has tended to concentrate along main roads leaving the internal sites underdeveloped. This issue will be dealt with in the Land Use Scheme that is currently being developed for the area.
Notwithstanding the above, it is clear that additional land must by identified in and around Kokstad Town, in order to meet the current demand.
The linkages between specific land parcels and potential projects are given in Annexure F.
8 PLANNED AND ANTICIPATED FUTURE PROJECTS
In Greater Kokstad, the need for housing varies across the municipality, and across a wide income spectrum.
8.1 National and Provincial Priorities
The national and provincial Departments of Housing have established the following priorities in respect of the provision of housing:
Finalisation of existing projects Removal of slums/informal settlements Rural housing Provision of Rental Stock Accommodating victims of HIV/AIDS Hostels redevelopment
In respect of the finalisation of existing projects undertaken in terms of the government’s housing subsidy scheme, Greater Kokstad has one project completed and closed out, and eight projects substantially completed but not yet closed out. It will be important therefore that municipal officials engage with the provincial Department of Housing to ensure that these closeouts are undertaken timeously. The provincial Department has established target dates by which this should be achieved (see Annexure B).
Removal of slums and informal settlements has been the municipality’s main priority to date, and will continue to be the main priority for the foreseeable future. This is evidenced in the areas already identified around Kokstad Town and the other urban centres for upgrading and replacement. With the possible additions of replacing traditional dwellings and rural land reform, this represents the largest demand in the municipality. Potential projects have already been identified to address this category, with Franklin currently being prepared.
Rural housing is also starting to gather momentum in the municipality, the major and most advanced project being in respect of land reform at Makhoba.
The rental/social housing category is described below, as is progress with hostels redevelopment.
Whilst housing delivery in the municipality is generally very good, both in terms of the 6000 houses delivered to date, and the planned and identified future projects, it would
30 appear that the major gap in respect of planned housing delivery in Greater Kokstad is the provision of shelter for victims of HIV/AIDS, and accommodation for the wider impact of this pandemic, where the economically active members of society are hardest hit, leaving behind the elderly and children, the latter often in child-headed households. It is important therefore that the municipality prioritise this category for future attention.
8.2 Project Categorisation
Planned and anticipated future projects can be categorised under various programmes. The Housing Act, 1997 defines “National Housing Programme” as any national policy framework that achieves the following objectives:
Assistance to persons who cannot independently provide for their own housing needs Facilitation of housing delivery Rehabilitation or upgrading of existing housing stock
These programmes to facilitate housing development, include, but are not limited to, the following:
The Housing Subsidy Scheme The Discount Benefit Scheme to promote home ownership The Public Sector Hostels Redevelopment Programme
8.3 Housing Subsidy Scheme
Most of the planned and identified housing projects for Greater Kokstad, and all of the substantially complete projects are applicable to the Housing Subsidy Scheme. This includes the currently active project at Horseshoe, the projects currently in preparation at Franklin, Makhoba and Willowdale, and the many identified future projects.
Such projects require considerable time for preparation and approval, and it is important therefore to plan far enough ahead to ensure continuity of delivery. This is addressed later.
8.4 Discount Benefit Scheme
The municipality has not at this stage identified any houses to which the Discount Benefit Scheme would apply.
8.5 Public Sector Hostels Redevelopment Programme
Greater Kokstad Municipality has two hostels, Shayamoya Hostel and Bhongweni Hostel, and a facility known as Single Quarters.
Shayamoya Hostel
This hostel has approximately 50 rooms, but is no longer habitable. The building is very old, and is collapsing in places. Notwithstanding this, some people are still living in it.
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This structure is beyond renovation, and will have to be demolished and rebuilt to accommodate families, rather than individuals.
Bhongweni Hostel
Bhongweni Hostel has about 64 rooms. The structure is basically sound. However, it has been extensively vandalised. The roof has been removed from two of the blocks, and windows, doors, toilets and electrical wiring have been stolen.
Because the structure is basically sound, this hostel could be renovated into family units.
Some 40 people are staying in Block 2 of this hostel. This block still has a roof, windows and doors. However, no maintenance and cleaning has been taking place, so conditions are unhygienic, and there is a shortage of potable water for drinking and for the toilets. This block is also suitable for renovation into family units.
Single Quarters
The Single Quarters comprise 48 rooms. These units are small, but they are all occupied. These structures are very old, and are showing signs of structural distress. The Single Quarters are identified for renovation and transformation to family units.
Some of the current occupants of the Single Quarters claim to be paying rent, but the municipality has no records of this, or proof of ownership of these properties. An investigation will therefore have to be carried out to clarify these matters.
8.6 Municipal Owned Houses
In Bhongweni there are a number of houses belonging to the Municipality. The Municipality is in the process of auditing these houses, to determine how many there are. Although these houses are occupied, no rent is being paid to the Municipality. This requires further investigation, to determine who the occupants are, and who they are paying rent to, if rent is being paid at all.
The municipality has identified a need for policy formulation to guide the establishment of the institutional arrangements to manage these houses.
8.7 Rental / Social Housing
Respond Housing
Greater Kokstad Municipality, in partnership with Respond Housing from Northern Ireland are presently formulating a rental/social housing project to cater for the middle and upper income brackets.
Approximately 600 units are anticipated for this development, and the land has already been identified.
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Construction of Rental Flats
An additional rental housing project, for the construction of 30 units, targeting the middle- income market has been identified by the Municipality. The estimated cost of this project is R20 million.
Establishment of a Section 21 Housing Company
The municipality has decided that the most suitable strategy for implementing rental and social housing will be to enter into Public Private Partnerships (PPPs), and has elected to form a Section 21 company to take this initiative forward.
Transnet Houses
Transnet is in the process of selling their housing stock to GKM. This comprises approximately 50 units, and is located in Franklin and Kokstad Town. The Municipality is currently considering utilising this housing stock for rental purposes.
8.8 Worker Housing
Hans Merensky
The Hans Merensky development has created a demand for housing, for staff employed in the timber industry. A need for 600 units has been identified. Suitable land for this development still has to be identified.
8.9 Other
Shayamoya 236 sites
This is a project, which was started but not completed. The company Greenstart, which was responsible for this development, has now been taken over by Blue Financial Services. It is anticipated that the development will proceed, pending repackaging and municipal approval.
8.10 Engagement with the Private Sector
Arising out of the Provincial Housing Summit 2006, municipalities are to engage companies in their areas with a view to exploring and ensuring the provision of employee housing and company-assisted housing. In this regard, Greater Kokstad Municipality is developing an exemplary track record and is well advanced with such initiatives, as evidenced in several of the projects described above, most noticeably in the rental/social housing sector with the Respond Housing initiative, the construction of rental flats, the take-over of Transnet houses and the establishment of a Section 21 company, and also in the Hans Merensky initiative for worker housing in the timber industry.
33 9 INTEGRATION WITH OTHER SECTORS
Integrated development is a cornerstone of the national Department of Housing’s policy, the “Comprehensive Plan for the Development of Sustainable Human Settlements”, which recognises the inadequacy of existing apartheid settlement patterns, and housing development as is has been taking place under the new dispensation to date. This policy is described in Section 2.4 above.
Integrated development itself is an essential condition for the successful evolution of society, and for individuals to reach their potential. Integration across different sectors is the central objective of the IDP process. However, integration must be addressed both at the IDP level, and at the project level.
At the IDP level, projects first need to be prioritised. Then the various departments can be informed, so that the various support services can be budgeted for and provided on a timeline which is consistent with the provision of housing.
At the project level, this can include, but is not necessarily limited to physical infrastructure such as: Road Access Water and Sanitation Infrastructure Energy supply (Electricity) Access to telecommunications
It also includes social infrastructure such as: Education Health Care Creches Provision of facilities for special needs groups e.g. HIV/AIDS, the aged, orphans Sites for religious activity
The town planning layout for the development should make provision for all of the above, as appropriate.
Provision should also be made for economic opportunity, and where appropriate, food security. This provision can be addressed at either the IDP level or project level, depending on the specific circumstances, and the provisions of the municipality’s Spatial Development Framework (SDF), and Land Use Management System (LUMS), and could include:
Facilities for micro-enterprises Commercial development Agriculture or community gardens
A major concern, already identified by the municipality, is a lack of poverty alleviation programmes. The need for such programmes is illustrated by the fact that 78% of the population earn less than R400 per month, and only 2,3% of the population earn more than R6 400 per month. At this stage there is little evidence to indicate that there will be sufficient LED projects to support the development of sustainable human settlements, particularly at a scale to match the housing need. This issue is relevant to those housing projects already substantially completed, as well as new projects.
34 Although the municipality has identified three potential economic growth pillars, namely agriculture, tourism and manufacturing/industry, the strategy has yet to be realised in the creation of sufficient, sustainable employment opportunities. It is anticipated that this will remain a challenge for the foreseeable future, and will impact negatively on the sustainability of existing and future housing projects.
Therefore, coordination must take place between departments to ensure integration of development activities. It will be the responsibility of the municipal housing component to ensure that all other functional components or departments are informed timeously. This will enable budgetary allocations to be addressed, and the actual service provision to take place concurrently with the housing development.
For the engineering infrastructure, funding provision will be made through the MIG programme. It is important to understand that MIG funds can be committed up to five years in advance. Therefore adequate forward planning must take place for all housing development, in order to ensure timeous provision of the bulk and connector engineering services.
In the Province of KwaZulu-Natal there are two types of forum, which can be utilised to facilitate better coordination for integrated development. The first is the municipal housing forum, which usually takes place on a monthly basis in each municipality, and where the issues affecting each actual and potential new housing project can be discussed and resolved. The other is the District Service Provider Forum (SPF).
Although mentioned under Section 7. Land Identification, it is important also to note here, that integration with other sectors can only meaningfully be taken forward when specific land parcels have been identified on which the developments can take place. This land identification therefore needs to take place at an early stage, in order to allow other sector departments to plan and budget for the provision of their particular service as it relates to the specific housing development under consideration.
10 HOUSING ADMINISTRATION AND INSTITUTIONAL FRAMEWORK
10.1 Housing Administration
Administration in respect of housing is an important aspect of the municipality’s responsibility, and includes the following:
Planning of new housing development Project management Property inspection and valuation Setting of, and collecting rates, and service charges Rental of municipal housing stock, and the maintenance thereof Management, maintenance and administration of municipal-owned hostels Community liaison Record keeping
In addition to the above, changes in both functions and property ownership between the three spheres of government, and inaccurate or inadequate record keeping, have increased the responsibilities of local government in the housing sector.
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Kokstad officials are currently undertaking an audit to determine the ownership of a number of properties. The workload, particularly in respect of subsidy housing, has been exacerbated by the practice of home ownership changing hands on an informal basis. This is a major problem, and is particularly apparent in Shayamoya. Resolution of this issue represents a significant demand on the capacity for housing administration within Greater Kokstad.
It is imperative that the municipality completes such audits successfully, and that adequate resources are applied to enable this to be achieved.
10.2 Institutional Framework
Greater Kokstad Municipality currently has a housing component comprising five posts, as shown below. This component falls within the Technical Services Division.
Housing Manager (Vacant)
Housing Project Facilitators (2)
Trainee Housing Project Facilitator (1)
Front Desk Liaison Officer (1)
10.3 Capacity Building
The post of Housing Manager is a key post, being the most senior in the component, and is currently vacant. Steps must be taken to ensure that this post is filled, and that funds are available for this appointment.
The municipality will have to assess the adequacy of the capacity of this component to manage the workload associated with the multi-year housing programme presented in this plan, and adjust the component accordingly. It would appear however, that additional capacity will be required in order to cope with the workload anticipated in meeting the housing need.
In particular, it can be anticipated that additional project management and professional engineering skills will be necessary to drive housing development on the scale required. These skills are in short supply nationally, as well as at the local level. If the municipality is unable to recruit sufficient capacity as staff, then it will have to consider outsourcing, either on a programme or project basis, in order to ensure delivery of housing at the required rate.
36 In addition, further capacity for housing administrative functions will be required. In this case the municipality should be able to recruit, and if necessary train personnel for these functions on a cost effective basis.
With regard to the existing staff, the municipality has a skills development policy, in terms of which each staff member is required to have a current skills development programme. At present this requires to be updated in respect of the housing component. However, staff from this component regularly attend provincial workshops to keep abreast of current housing initiatives and policy developments.
In the preparation of this municipal housing plan, municipal staff, particularly those of the housing and planning components, have played an active and participatory role, particularly in undertaking primary research, where important information was not readily available. This has undoubtedly contributed to a greater understanding of the municipal housing planning process, and will stand the municipality in good stead, when updating this plan in future years. It has also added significant value to this document as a planning tool for the future.
11. PERFORMANCE MEASUREMENT
A variety of measures can be utilised in the assessment of performance for housing delivery. These can include, but are not limited to:
Number of units delivered (per annum) Funding utilised (per annum) Size of housing backlog Progress against milestones for specific projects
These measures can be used to assess the quantity of housing delivery. Some measures could also be introduced to assess the quality of housing delivery, such as:
Technical construction standards: compliance with National Building Regulations and National Home Builders Registration Council requirements Housing Consumer Satisfaction Surveys
For the purposes of this Municipal Housing Plan, it is recommended that the number of units delivered per annum be utilised as the primary performance measure. This will have a direct relationship to the funding utilised, particularly in respect of the subsidy housing scheme. On average this municipality has delivered approximately 600 units per annum since the inception of the subsidy housing scheme. It is suggested that a target of between 800 and 1000 units could be adopted for the future, taking into consideration the scale of the housing demand and the government’s intention to eliminate all informal settlements.
It will also be important for the municipality to monitor the size of the housing backlog, and to strive ultimately for a housing backlog of zero. It should be noted that from a national perspective, an unanticipated increase in the national housing backlog in recent years was revealed. This was attributed largely to a smaller family size than anticipated i.e. the number
37 of people per house, and the ongoing trend towards urbanisation. Only recently has a decrease in the national housing backlog been reported.
The other measures suggested above, can best be applied on a project specific basis.
12. HOUSING DELIVERY PROGRAMME
The proposed housing delivery programme is attached as Annexure G.
The following considerations and assumptions have been utilised in preparing this programme:
A typical housing project will take 3 years from inception to completion, assuming it runs smoothly.
Approximately 18 months will be required for preparation and approval and 18 months for implementation.
Large or complex projects will take longer.
Unforeseen issues or difficulties will increase the project duration.
The actual rate of delivery will be governed by the following:
o The capacity of the municipality to manage the programme.
o The capacity of the construction industry to deliver.
o The funding available.
A detailed programme will be established for each project at the appropriate time, which will guide project specific performance and delivery. Each project specific programme will have to be kept current, as appropriate. These project- specific programmes will then feed back into the overall municipal programme of delivery, as contained in this Municipal Housing Sector Plan.
An additional key consideration is the fragmented nature of informal settlements around Kokstad Town i.e. a relatively large number of small, geographically discrete informal settlements. It is suggested, rather than addressing each individual settlement as a project, that the municipality combines them either into a single project or small number of relatively large projects. In this way, scarce project management and technical resources can be better utilised, as well as benefiting from economies of scale in the actual construction.
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13. CONCLUSIONS
The following conclusions can be drawn from the compilation of this Municipal Housing Plan:
Greater Kokstad Municipality has established an excellent track record in housing delivery, with over 6000 units delivered since the inception of the Housing Subsidy Scheme. This compares most favourably with other municipalities of comparable size. The current need for housing amounts to a further 9000 units. Of this total, 1877 houses will be provided as a result of projects currently in preparation. An additional 3406 will be supplied as a result of identified future projects. This leaves a balance of 3717 houses still needed and for which planning still has to be undertaken. The Municipality has established the necessary planning frameworks to take housing development forward in an orderly manner. These include the municipality’s Integrated Development Plan, Land Use Management System, Spatial Development Framework, and now the Municipal Housing Plan. Identified future projects represent a pragmatic and appropriate response to housing across various sectors, including freehold, rental, rural land reform, worker, and farm worker housing. Both full subsidy and credit linked developments are being planned. The Municipality’s engagement with the private sector is ongoing and bearing fruit in terms of housing delivery. Identification of land for further housing development, and the availability of bulk infrastructure should be treated as a high priority. The municipal capacity to deliver continues to be a challenge, as a result of the scale of delivery required, and the increased area of responsibility, brought about by the municipal demarcation process. Of concern is the level and growth of economic activity to support both existing and new housing developments, which are growing rapidly, and to enable them to function as sustainable human settlements.
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REFERENCES
1. Greater Kokstad Local Municipality: Reviewed Integrated Development Plan (IDP) 2006/2007
2. Greater Kokstad Land Use Management System (LUMS): UDIDI Environmental, Planning and Development Consultants
3. Greater Kokstad Local Municipality: Strategic Environmental Assessment: UDIDI Environmental, Planning and Development Consultants
4. Greater Kokstad Municipality: State of the Municipality Report
5. Greater Kokstad Municipality: Annual Report for the Financial Year 2005/2006
6. Greater Kokstad Municipality: Summary of Operating and Capital Budget 2007/2008
7. National Housing Programme for Housing Sections of Integrated Development Plans: National Department of Housing
8. Guidelines to Assist Municipalities in the Preparation of Municipal Housing Plans: Department of Housing KwaZulu-Natal
9. Municipal Housing Sector Plan Manual (Funded by USAID): Project Preparation Trust of KZN
10. Statistics South Africa http://www.statssa.gov.za/default.asp
11. The Department of Housing http://www.housing.gov.za/default.htm
12. Department of Housing KwaZulu-Natal http://www.kznhousing.gov.za/
13. The National Housing Code
14. The Housing Act, 1997 (Act No. 107 of 1997)
15. The Comprehensive Plan for Sustainable Human Settlements, National Department of Housing
16. The Greater Kokstad Municipality Website http://www.kokstad.org.za/
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